An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L 7)

 
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An Act to Combat Poverty and
                                                                                                        Social Exclusion (R.S.Q., chapter L‐7)
                                                                                                               Highlights of the Act and Its Application
                                                                                                                                                                       June 2009

                                                                         Today, the links between poverty and health are          Québec sans pauvreté (Collective for a Poverty
                                                                         well-established (Phipps, 2003) and the resulting        Free Québec) (formerly the Collectif pour une loi
                                                                         inequalities in health have proven to be persistent      sur l’élimination de la pauvreté − Collective for a
                                                                         (Whitehead & Dahlgren, 2007). Indeed, the                Law on the Elimination of Poverty), which carried
                                                                         population groups with the worst health status are       out a widespread process of public consultation
                                                                         materially underprivileged and socially excluded         and deliberation (Noël, 2002, p.101).
                                                                         (De Koninck et al., 2008), leading many analysts
                                                                         to single out poverty as one of the primary              The Act is enabling legislation, meaning that it is
                                                                         determinants of health.                                  a legislative text that sets out general principles
                                                                                                                                  and gives the Government the authority to decide
                                                                         In 2002, the Government of Québec adopted An             how these principles will be applied (Ninacs,
                                                                         Act to Combat Poverty and Social Exclusion               Béliveau & Gareau, p.10). As such, it provides
            For up-to-date knowledge relating to healthy public policy

                                                                         (R.S.Q., c. L-7). This legislation is the first of its   the Government with guidelines for implementing
                                                                         kind in North America.                                   the measures required to reach its objectives with
                                                                                                                                  regard to poverty and social exclusion (MSSS,
                                                                         This series of background papers presents the
                                                                                                                                  2008).
                                                                         history that preceded this legislation, and
                                                                         highlights key elements of its application. This
                                                                         paper addresses the following questions:                 Formulation of An Act to Combat
                                                                         • How is An Act to Combat Poverty and Social             Poverty and Social Exclusion
                                                                           Exclusion formulated and applied?
Briefing Note

                                                                         • What impact has this legislation had on                In its Preamble, the Act refers to Québec’s
                                                                           poverty and social exclusion in Québec?                Charter of Human Rights and Freedoms. Also
                                                                                                                                  mentioned are:
                                                                                                                                  • The imperative to enhance the social, cultural
                                                                         Introduction                                               and economic development of all human
                                                                                                                                    beings;
                                                                         An Act to Combat Poverty and Social Exclusion
                                                                         was passed unanimously on December 13, 2002              • The harmful effects of poverty and social
                                                                         in Québec’s National Assembly (the provincial              exclusion on social and economic
                                                                         legislature). It marked the beginning of a National        development;
                                                                         Strategy to Combat Poverty and Social Exclusion,         • The fact that people living in poverty are the
                                                                         in the aim that Québec would progressively join            first to act to improve their situation;
                                                                         the ranks of industrialized States with the lowest
                                                                         poverty rates, by 2013 (Ministère de l’Emploi et         • The desire of Québec society as a whole to
                                                                         de la Solidarité sociale [MESS], 2002).                    act in a concerted manner and to pursue a
                                                                                                                                    course of action to combat poverty and social
                                                                         The first legislation of its kind in North America,        exclusion (An Act to Combat Poverty and
                                                                         this law is innovative because it makes the                Social Exclusion, 2002).
                                                                         reduction of poverty and social exclusion an
                                                                         explicit government priority (Noël, 2002, p.101).        The Act comprises 70 sections, divided into
                                                                                                                                  8 chapters. Highlights of the Act are outlined
                                                                         The origins of the Act are particularly striking, in     below.
                                                                         that it is the direct result of broad-based,             • Object: “The object of this Act is to guide the
                                                                         grassroots mobilization by community                       Government and Québec society as a whole
                                                                         organizations involved in the Collectif pour un            towards a process of planning and
2                                                                                                         Briefing Note
                                                                            An Act to Combat Poverty and Social Exclusion
                                                               (R.S.Q., chapter L-7): Highlights of the Act and Its Application

          implementing actions to combat poverty, prevent        The Act stipulates that the Government must:
          its causes, reduce its effects on individuals and
                                                                 • Submit an action plan that sets goals that must
          families, counter social exclusion and strive
                                                                   be reached, within sixty days of the Act coming
          towards a poverty-free Québec” (An Act to
                                                                   into effect (sections 13–21).
          Combat Poverty and Social Exclusion, 2002,
          Section 1).                                            • Create a Comité consultatif de lutte contre la
                                                                   pauvreté et l’exclusion sociale (Advisory
      • Definition of poverty: “… the condition of a
                                                                   committee on the prevention of poverty and social
        human being who is deprived of the resources,
                                                                   exclusion) to advise the Minister on actions to be
        means, choices and power necessary to acquire
                                                                   taken within the scope of the national strategy to
        and maintain economic self-sufficiency or to
                                                                   combat poverty and social exclusion (sections
        facilitate integration and participation in society”
                                                                   22–34).
        (An Act to Combat Poverty and Social Exclusion,
        2002, Section 2). This definition is innovative in       • Establish an Observatoire de la pauvreté et
        that it goes beyond the economic aspects of                l’exclusion sociale (Observatory on poverty and
        poverty to include its social dimensions                   social exclusion) to gather, compile, integrate,
        (W. Ninacs, personal communication, January 29,            analyze and disseminate information on poverty
        2009).                                                     and social exclusion (sections 35–45).
      • Five axes for action are laid out in section 7:          • Establish the Fonds québécois d’initiatives
        1. Preventing poverty and social exclusion, with           sociales, a fund for social initiatives dedicated to
           a focus on developing the potential of                  the financing of initiatives to combat poverty and
           individuals;                                            social exclusion (sections 45–57).
        2. Strengthening the social and economic safety          • Lastly, the Act sets out standards for reporting
           net;                                                    and accountability (sections 58–63).
        3. Promoting access to employment and
           increasing the attractiveness of work;
        4. Promoting the involvement of society as a             Application of An Act to Combat
           whole;                                                Poverty and Social Exclusion
        5. Ensuring consistent and coherent intervention
           at all levels (An Act to Combat Poverty and           ACTION PLAN
           Social Exclusion, 2002, Section 7).                   On April 2, 2004, the Government unveiled the
      • Power to take initiative. The Act empowers the           definitive version of the action plan entitled
        Ministère de l’Emploi et de la Solidarité sociale        Reconciling Freedom and Social Justice:
        (MESS) to take initiative and play an advisory role      Government Action Plan to Combat Poverty and
        to the Government on issues concerning the fight         Social Exclusion (Ministère de l’Emploi, de la
        against poverty and social exclusion (An Act to          Solidarité sociale et de la Famille [MESSF],
        Combat Poverty and Social Exclusion, 2002,               2004).This plan was solidly anchored in measures
        Section 19).                                             announced a few days earlier in the 2004-2005
                                                                 provincial budget, which allocated 2.5 billion dollars
      • Impact clause. Section 20 of the Act calls for           over five years (2004-2009) to carry out the
        action from any minister who estimates that its          provisions of the Act (Collin, 2007). The Action Plan
        legislative or regulatory proposals could have           is comprised of four axes and 47 measures. The four
        direct and significant impacts on the incomes of         axes as well as various measures are listed below.
        persons or families who, according to the
        indicators retained under the Act, are living in         Axis 1: Improve the lives of people living in
        poverty. These ministers are required to give an         poverty
        account of any foreseeable impacts when                  • Enhance unemployment insurance to meet
        presenting proposals to the Government.                    commitments under the Act
                                                                 • Improve the situation of low-income workers by
                                                                   promoting work
                                                                 • Facilitate employment searching by increased
                                                                   support

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Briefing Note                                                                                                              3
        An Act to Combat Poverty and Social Exclusion
        (R.S.Q., chapter L-7): Highlights of the Act and Its Application

        • Create a particular support system for those with                OBSERVATOIRE DE LA PAUVRETÉ ET L’EXCLUSION
          significant employment limitations                               SOCIALE
        • Improve access to decent, affordable housing                     This observatory was replaced by the Centre
        • Ensure access to sufficient quantities of good                   d’études sur la pauvreté et l’exclusion sociale
          quality foods                                                    (Centre for studies on poverty and social exclusion).
        • Provide access to medication through a
          prescription drug policy                                         CENTRE D'ÉTUDES SUR LA PAUVRETÉ ET
                                                                           L'EXCLUSION SOCIALE (CEPE)
        Axis 2: Prevent poverty and social exclusion by
                                                                           Implemented in the spring of 2005, the CEPE is
        promoting people’s potential
                                                                           linked to the Ministère de l’Emploi et de la Solidarité
        • Support children and their families to ensure                    sociale (MESS). This Centre is coordinated in
          equal opportunity                                                collaboration with an executive committee, which is
        • Contribute to the success and integration of                     comprised of people from academic, government
          young people                                                     and research sectors, as well as of people who work
        • Develop an integrated continuum of services for                  with those living in situations of poverty. The CEPE’s
          young people                                                     mandate is to collect, analyse and diffuse
        • Fight the social exclusion of seniors                            information, particularly statistical data, pertaining to
                                                                           poverty, social exclusion and social inequalities
        Axis 3: Involve society as a whole                                 (CEPE, 2007). Using indicators chosen by the
                                                                           MESS, the CEPE surveys the social and economic
        • Develop tools for solidarity with underprivileged                situation of people living in poverty in the aim of
          communities                                                      measuring change, following the application of An
        • Support local and regional initiatives                           Act to Combat Poverty and Social Exclusion.
        • Support the collective fight against poverty and
          social exclusion                                                 FONDS QUÉBÉCOIS D’INITIATIVES SOCIALES
                                                                           This fund was instituted in 2002 to support various
        Axis 4: Ensure consistent, coherent action                         local and regional strategies to combat poverty and
        • Develop tools to coordinate efforts, involve                     social exclusion. Currently, the Fund contributes to
          citizens and measure progress                                    programmes in various municipalities that target
        • Step up discussions and work in collaboration                    priority intervention zones. It also contributes to food
          with the federal government                                      security programs including the Québec Breakfast
                                                                           Club, as well as to work-integration programs for
        • Adapt action to the needs of Aboriginal nations
                                                                           people who are isolated from the job market (MESS,
          (MESSF, 2004)
                                                                           2007a).
        COMITÉ CONSULTATIF DE LUTTE CONTRE LA
        PAUVRETÉ ET L’EXCLUSION SOCIALE (CCLP)                             Impact of the Act
        The work of the advisory committee began in March
        of 2006. The 17 members appointed by the                           It is still too early to judge the effects of An Act to
        Government are representatives of organizations                    Combat Poverty and Social Exclusion (Noël, 2008).
        involved in the fight against poverty and social                   Generally speaking, this Act has been welcomed
        exclusion, people living in poverty, employers’                    favourably and considered to be a political
        groups, unions, municipal and community groups,                    innovation (Noël, 2004, p.511). That being said, its
        and other sectors of civil society (CCLP, 2007a). The              interpretation and application have been closely
        mandate of this committee is to advise the                         monitored by various groups, who criticize the
        Government on its actions implemented under the                    “piecemeal” rather than broad approach taken by the
        Act, as well as to monitor government policies that                government, as well as the government’s inaction on
        have an impact on poverty and social exclusion                     many fronts, in the years following the adoption of
        (CCLP, 2007b).                                                     the action plan (W. Ninacs, personal communication,
                                                                           January 29, 2009). Community groups fear “the
                                                                           transformation of the battle against poverty into a
                                                                           battle against the poor, a return to square one with

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4                                                                                                                   Briefing Note
                                                                                      An Act to Combat Poverty and Social Exclusion
                                                                         (R.S.Q., chapter L-7): Highlights of the Act and Its Application

      regards to the prejudices from which the law had                     elsewhere in Canada, with the exception of
      begun to dissociate itself” (Ninacs et al., 2003, p.15).             Newfoundland and Labrador (where there is also a
                                                                           governmental anti-poverty strategy) (Noël, 2008;
      The Individual and Family Assistance Act constitutes                 Fortin, 2008).
      one of the main criticisms levelled by the Collective
      for a Poverty-Free Québec and by other anti-poverty                  The Ministère de l’Emploi et de la Solidarité sociale
      groups and organizations. Adopted in July 2005, this                 highlights measures and achievements with regards
      Act was presented as part of An Act to Combat                        to the Act:
      Poverty and Social Exclusion. However, it was
                                                                           • Four raises in minimum wage since the Action
      condemned for twisting the spirit of the anti-poverty
                                                                             Plan was first implemented, starting at $7.30 in
      legislation through its stigmatization of the concept of
                                                                             2004 and reaching $9.50 by 2010;
      aid in Québec’s public assistance system (Collectif
      pour un Québec sans pauvreté, 2004; Ulysse, 2007,                    • Increases to the amounts promised in April 2004
      p.56).                                                                 for social housing, in order to provide 20,000 new
                                                                             low-cost or affordable housing units by 2009;
      The Collective also considers that, despite An Act to
                                                                           • Free medication for over one million people in
      Combat Poverty and Social Exclusion, the
                                                                             vulnerable financial situations, under the
      Government of Québec has “abandoned” people
                                                                             government’s new medication policy;
      living alone (Collectif …, 2008). Statistics Canada
      data from 2005 (cited in CEPE, 2008) does, in fact,                  • Greater participation in job-entry measures: since
      indicate that people living alone, as well as single-                  March 2003, participation has grown by 10%
      parent families, are more at risk of low income than                   among people from cultural communities and
      couples or two-parent families (CEPE, 2008).                           visible minorities, by 20% among people aged 50
      Indeed, in 2005 the low-income rate was 35% for                        or over, and by over 12% among people with
      people living alone, compared to 7% for economic                       handicaps (MESS, 2007b).
      families 1 (CEPE, 2008). People living alone do not
      benefit from the same premium incentives to work as
      adults within families or as handicapped people,                     Conclusion
      among other benefits (Roy, Fréchet & Savard, 2008).
      The situation of single-parent families has improved,                An Act to Combat Poverty and Social Exclusion has
      but remains far more fragile (poverty rate of 20%)                   placed Québec at the forefront of the fight against
      than for other types of economic families (Roy et al.,               poverty in Canada (Roy et al., 2008). However,
      2008). Furthermore, low-income families live, on                     despite the innovative nature of this legislation,
      average, 30% below the poverty line.                                 11.5% of the population of Québec - 875 000 people
                                                                           - still live below the poverty line (Fortin, 2008).
      In its own assessment of the Act and its Government                  Consequently, efforts to eliminate poverty are
      Action Plan to Combat Poverty and Social Exclusion,                  ongoing. The work ahead will include documenting
      the Government of Québec has highlighted the                         the implementation of the Act and assessing its
      positive impact of the measures that have been                       impacts. Since poverty is a significant determinant of
      taken. Combined with other factors, such as                          health, we can expect that the public health
      economic growth, the Government believes that                        community will take an active role in these
      these measures have contributed to an overall                        undertakings.
      alleviation of poverty in Québec, and have “helped
      improve Quebecers’ living conditions, particularly
      those of families” (MESS, 2007b, p.2). Indeed,                       References
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Tel: 514 864-1600 ext. 3615             •       Fax: 514 864-5180             •       Email: ncchpp@inspq.qc.ca           •      www.ncchpp.ca
Briefing Note                                                                                                              5
        An Act to Combat Poverty and Social Exclusion
        (R.S.Q., chapter L-7): Highlights of the Act and Its Application

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Tel: 514 864-1600 ext. 3615          •       Fax: 514 864-5180             •     Email: ncchpp@inspq.qc.ca        •     www.ncchpp.ca
6                                                                                                           Briefing Note
                                                                              An Act to Combat Poverty and Social Exclusion
                                                                 (R.S.Q., chapter L-7): Highlights of the Act and Its Application

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Tel: 514 864-1600 ext. 3615        •      Fax: 514 864-5180           •       Email: ncchpp@inspq.qc.ca           •      www.ncchpp.ca
June 2009
Authors: Élisabeth Mercier and Anika Mendell, National Collaborating Centre for Healthy Public Policy

ACKNOWLEDGMENTS
The NCCHPP gratefully acknowledges the helpful comments of Alain Noël, William Ninacs and Catherine Ford.
The National Collaborating Centre for Healthy Public Policy (NCCHPP) seeks to increase the expertise of public health actors across
Canada in healthy public policy through the development, sharing and use of knowledge. The NCCHPP is one of six Centres financed
by the Public Health Agency of Canada. The six Centres form a network across Canada, each hosted by a different institution and
each focusing on a specific topic linked to public health. In addition to the Centres’ individual contributions, the network of
Collaborating Centres provides focal points for the exchange and common production of knowledge relating to these topics. The
National Collaborating Centre for Healthy Public Policy is hosted by the Institut national de santé publique du Québec (INSPQ), a
leading centre in public health in Canada.
Production of this document has been made possible through a financial contribution from the Public Health Agency of Canada
through funding for the National Collaborating Centre for Healthy Public Policy (NCCHPP). The views expressed herein do not
necessarily represent the views of the Public Health Agency of Canada.
Publication N°: 1185
This document is available in its entirety in electronic format (PDF) on the Institut national de santé publique du Québec website
at: http://www.inspq.qc.ca and on the National Collaborating Centre for Healthy Public Policy website at: www.ncchpp.ca.
La version française est disponible sur les sites Web du Centre de collaboration nationale sur les politiques publiques et la santé
(CCNPPS) au www.ccnpps.ca et de l’Institut national de santé publique du Québec au www.inspq.qc.ca.
Reproductions for private study or research purposes are authorized by virtue of Article 29 of the Copyright Act. Any other use must
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Information contained in the document may be cited provided that the source is mentioned.
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LEGAL DEPOSIT – 1 QUARTER 2011
BIBLIOTHÈQUE ET ARCHIVES NATIONALES DU QUÉBEC
LIBRARY AND ARCHIVES CANADA
ISBN: 978-2-550-60706-9 (FRENCH PRINTED VERSION)
ISBN: 978-2-550-60707-6 (FRENCH PDF)
ISBN: 978-2-550-60708-3 (PRINTED VERSION)
ISBN: 978-2-550-60709-0 (PDF)
© Gouvernement du Québec (2011)
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